MANCHESTER-BY-THE-SEA, MASSACHUSETTS

Transcription

1 STUDY OF THE DEPARTMENT OF PUBLIC WORKS DRAFT REPORT MAY WEST STREET BOSTON, MASSACHUSETTS 02111

2 CONTENTS I. EXECUTIVE SUMMARY 1 II. ORGANIZATION AND MANAGEMENT OF THE DEPARTMENT 12 CURRENT ORGANIZATION STRUCTURE 12 ROLE OF THE DIRECTOR OF THE DEPARTMENT OF PUBLIC WORKS 14 RECRUITMENT OF THE DIRECTOR AND THE OPERATIONS MANAGER 19 III. SOLID WASTE AND RECYCLING SERVICES 26 COST OF WASTE AND RECYCLING SERVICES 26 COST OF TRANSFER STATION OPERATION 28 IV. GENERAL MANAGEMENT AND OPERATIONS 34 HIGHWAY DIVISION OPERATIONS 34 WATER AND SEWER DIVISION OPERATIONS 37 CEMETERY DIVISION OPERATIONS 40 VEHICLES AND EQUIPMENT 41 MUNICIPAL INFRASTRUCTURE REPORT 45 HUMAN RESOURCES MANAGEMENT 46 V. PUBLIC WORKS FACILITIES: A LONG-TERM IMPROVEMENT PLAN 48 LOCATION AND GENERAL CONDITION OF FACILITIES 48 FACILITY SIZE AND ESTIMATED COSTS 52 VI. IMPLEMENTATION OF RECOMMENDATIONS 54 PLAN OF ACTION 55 GENERAL FINANCIAL IMPACT OF RECOMMENDATIONS 56 PRIORITY OF RECOMMENDATIONS 57

3 I. EXECUTIVE SUMMARY MMA Consulting Group, Inc. was employed to conduct a management study of the Department of Public Works (DPW). The review covered the organization, management, staffing, planning, and service delivery framework of the Department. To conduct the analysis, the consultants reviewed information about the Department, including budgets, labor contracts, capital plans, and other reports, organization charts, and other written documentation. The consultants interviewed the leadership and supervisors of the Department, as well as employee representatives of various divisions of the Department. In addition to interviews and data review, the consultants conducted a windshield survey to observe the condition of roads, streets, drainage, and other facilities maintained by the DPW. The DPW provides a range of services to Town residents, including roadway maintenance, snow removal, water treatment and distribution, maintenance of parks, cemeteries, beaches, and athletic fields, and sanitary sewer collection and treatment. The Department oversees contractual services for solid waste collection and collection of recyclables, street sweeping, water plant operations, and sludge handling. The Department has a budget of approximately $2.6 million. The Department has 21 authorized positions and organizes services into four operational units (Cemetery Division, Highway Division, Water and Sewer Division, and Sewer Treatment Division). The Department has two primary missions. The Department is expected to meet daily maintenance and service needs and plan for future expansion and rehabilitation of the Town s infrastructure. With a small workforce and a relatively small budget devoted to public works services, the Department struggles to meet its daily maintenance responsibilities. The daily demands of providing services makes the development of a comprehensive planning process difficult. The primary findings and conclusions of this review are: The Town needs to strengthen the management and supervisory structure of the Department to enable the Director of Public Works to plan for and develop a strategy for infrastructure improvements. 1

4 The Director of the Department of Public Works has insufficient time to both oversee daily operations and develop a systematic planning process. The costs of identified infrastructure needs are so great that effective planning, project costing, and project management are essential. The Department, while it is relatively small, lacks a middle management structure. The Director is directly responsible for supervising three Foremen and the Chief Operator. The lack of time to plan creates inefficiencies within the Department. The Department does not have sufficient detailed information concerning components (inventory) of the Town s infrastructure organized in a manner that allows systematic decision-making by Town policy-makers. The Department does not have a multi-year capital plan and a pavement management plan linked to its infrastructure inventory. The employees of the Department should be empowered to participate in some decision-making processes (e.g., development of specifications for equipment). The conditions of public works facilities are poor. Given pressing financial demands and priorities in the Town, the construction of a new consolidated public works facility will not occur for many years. However, correction of any safety hazards and code violations in existing facilities may be required. The Town s approach to collecting solid waste (curbside collection and a transfer station) requires alteration. The Department generally has a sound equipment and vehicle fleet. The Department needs to consider selected adjustments in its inventory of equipment. 2

5 The primary recommendations made in this report are presented below. Create the position of Operations Manager. The Operations Manager should directly supervise and coordinate the work of the service delivery units of the Department and should be responsible for the following: Supervision of the Highway Foreman, Cemetery Foreman, Water and Sewer Foreman, and Chief Operator. Reviewing work completed, coordination of work force efforts, establishing daily priorities, and dealing with employee concerns and problems. Solving customer service problems and explaining operations to the public, as required. Overseeing and managing contractors providing services to the Department of Public Works. Serving as Acting Director, in the absence of the Director. Working with the Director to develop the budgets for each operational unit of the Department. Redefine the role of the Director of the Department of Public Works. The Director of the Department should be responsible for the following: General oversight of all Department operations. Direct oversight of the administrative services of the Department. Short-term planning, including the development of priorities of the Operations Manager. Long-term planning, including the development of comprehensive inventories of the Town s infrastructure and the development of priorities for infrastructure repair and replacement. Developing annual budgets and plans and managing the operating budget. Evaluating service delivery and the development of department budgets and cost estimates. Supervising engineering consultants. Coordinating functions with other Town agencies. 3

6 Reorganize the Department of Public Works. The creation of a new position of Operations Manager requires some minor reorganization of the Department. Under the new organization, the following chain of command would be operational: The Operations Manager, the Assistant to the Director, and the Accounts Clerk would report to the Director of the Department of Public Works. The Cemetery Foreman, Highway Foreman, Water and Sewer Foreman, and Chief Plant Operator would report to the Operations Manager. The equipment repair functions would remain in the Highway Division; however, once the position of Operations Manager is operational, it may be possible to have an Equipment Repair Division reporting to the Operations Manager. Exhibits I-1 and I-2 show the current and proposed organization of the Department of Public Works. 4

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8 Redesign the solid waste and recycling services. The Town should discontinue the practice of collecting solid waste and recyclables at the transfer station. Solid waste and recycling services should be provided by curbside pick-up. Develop a fee system to cover costs of solid waste collection and disposal. The Town should develop a system in which the costs of solid waste collection and disposal services are fully recovered by fees for service. Replace water meters. The Department should consider replacing water meters. Develop a Municipal Infrastructure Report. The Department should inventory roadways, water supply facilities (treatment, distribution, storage), sewer system facilities (collection and treatment), and equipment assets. This infrastructure report should identify service life for system components and replacement schedules for assets. Employ one additional Skilled Laborer in the Water and Sewer Division. The Department should employ one additional laborer for the Water and Sewer Division. Develop a written snow removal plan. The Department should develop a written snow removal plan which defines operations and priorities. Purchase a front-end loader. The Department would have increased flexibility with the purchase of a front-end loader. The current and proposed staffing of the Department is shown in the following exhibit. Two staff increases are suggested: the Operations Manager, and one additional position primarily assigned to the Water and Sewer Division. 6

9 EXHIBIT I-3 CURRENT AND PROPOSED STAFFING OF THE DEPARTMENT OF PUBLIC WORKS POSITION CURRENT PROPOSED DIFFERENCE ADMINISTRATION Director 1 1 Operations Manager Assistant to the Director 1 1 Accounts Clerk 1 1 Subtotal SEWER TREATMENT DIVISION Chief Plant Operator 1 1 Assistant Chief Operator 1 1 Skilled Laborer 2 2 Mechanic (part-time, see Cemetery Division).5.5 Subtotal HIGHWAY DIVISION Foreman 1 1 Equipment Operator 1 1 Skilled Laborer 3 3 Mechanic 1 1 Mechanic Helper 1 1 Subtotal 7 7 WATER & SEWER DIVISION Foreman 1 1 Secondary Operator 1 1 Skilled Laborer Subtotal CEMETERY DIVISION Foreman 1 1 Skilled Laborer 2 2 Mechanic (part-time, see Sewer Treatment Division).5.5 Subtotal Total

10 The major recommendations are listed below in the order they are presented in this report, along with assigned priorities. The recommendations contained in this report have been categorized as follows: Priority 1: Recommendations which establish the framework for other recommendations or directly affect the safety of personnel or the public. These recommendations need to be addressed immediately. Priority 2: Recommendations which should be implemented without delay, since they may bear directly on productivity and efficient operation of Department of Public Works services in the Town of Manchester-by-the- Sea. Priority 3: Recommendations which are important to the efficient provision of public works services in the Town of Manchester-by-the-Sea and which should be implemented as soon as reasonable and practical. EXHIBIT I-4 RECOMMENDATIONS AND PRIORITIES II-1 II-2 II-3 II-4 II-5 II-6 III-1 RECOMMENDATION The Town should create the position of Operations Manager to oversee field operations of the Department. The compensation for the Operations Manager should be between $65,000 and $75,000. The Town should redefine the role of the Director of the Department of Public Works. The Department of Public Works should realign the Department s chain of command when the proposed position of Operations Manager is filled. The Department s chain of command should be as follows: The Operations Manager, the Assistant to the Director, and the Accounts Clerk should report to the Director of the Department of Public Works. The Highway Foreman, the Cemetery Foreman, the Water and Sewer Foreman, and the Chief Operator should report to the Operations Manager. The Town should conduct an aggressive search for the position of Director of Pubic Works. The Town should provide solid waste services by one method, rather than by both curbside collection and the use of a transfer station. PRIORITY

11 III-2 The Town should use curbside collection services. 2 III-3 III-4 III-5 IV-1 The Town should develop a system in which the costs of solid waste collection and disposal services are fully recovered by fees for service. The Town policy-makers should determine whether the Town should adopt a pay-as-you-throw policy, or develop a system of monthly, quarterly, semi-annual, or annual collection of fees. The Town should immediately increase the fees for day passes for the transfer station. The Department should develop a systematic plan to re-pave approximately 2.3 to 2.5 miles of roads each year IV-2 The Department should develop a written snow removal plan. 1 IV-3 IV-4 The proposed position of Operations Manager should work with division supervisors to develop a specific snow removal plan which addresses the unique characteristics of the Town. The Department should develop the snow removal plan and necessary policies prior to next winter. 2 2 IV-5 The Department should purchase a front-end loader. 2 IV-6 IV-7 IV-8 IV-9 IV-10 IV-11 IV-12 IV-13 The Department should budget approximately $150,000 to purchase the front-end loader. The Department should purchase a dump body with necessary hydraulic equipment for use on the recently purchased truck. The Department should, when possible, purchase equipment which has multiple uses, to increase flexibility and productivity. The Department should use a collaborative process to help determine the type of vehicles and equipment the Town should purchase. The Department should identify non-functioning water meters during the quarterly reading process. The Department should develop a program of systematic water meter replacement. The Town should consider alternative methods of replacing meters, including employing a staff person with responsibility for meter installation and meter reading, or employing a company to supply and replace all water meters. The Department should purchase a small pick-up truck with basic equipment for purposes of meter reading and meter replacement

12 IV-14 IV-15 IV-16 IV-17 Purchase a new backhoe (as planned) and keep the old backhoe as a back-up piece of equipment. The Department should select one type of fire hydrant and replace all units with the same type of hydrant, over time. The Department should change the name of the Cemetery Division to the Cemetery and Park Division. Evaluate the type of equipment used for mowing fields and cemeteries IV-18 Review the pay scales of seasonal personnel. 2 IV-19 IV-20 IV-21 IV-22 The Department should find a more appropriate location from which to sell grave sites. (See Section V). The Department should develop and present systematic data on vehicle and equipment use to ensure a systematic replacement of equipment and vehicles. The Department should develop a Municipal Infrastructure Report which inventories and evaluates each element of the Town s infrastructure. The Operations Manager should be responsible for overseeing employee performance and assessing the professional development needs of employees V-1 The Town should develop a long-term plan to improve the condition of public works facilities (five, ten, or more year plan). V-2 The Department of Public Works should identify code and safety concerns within facilities and budget for necessary repairs. V-3 The Director of the Department of Public Works should be provided with a private office and work space The report is organized into several sections. This Executive Summary presents the major findings and recommendations. Section II, Organization and Management of the Department, describes the current organization of the Department of Public Works, proposes a new organizational structure, and recommends an improved management structure. Section III, Solid Waste and Recycling Services, describes the current service framework and recommends a new approach to service delivery. Section IV, General Management and Operations, contains a range of administrative recommendations for several divisions, including the development of a comprehensive infrastructure report. Section V, Public Works Facilities: A Long-Term Improvement Plan, suggests a long-term plan 10

13 for public works facility replacement and identifies several space needs or facility issues which require more immediate attention. Section VI, Implementation of Recommendations, presents an approach to implementing recommendations. 11

14 II. ORGANIZATION AND MANAGEMENT OF THE DEPARTMENT CURRENT ORGANIZATION STRUCTURE The current staffing complement of the Manchester-by-the-Sea Department of Public Works is shown in Exhibit II-1. Exhibit II-2 presents the current organization chart for the Department. The organization chart shows the Director as the manager overseeing the operations of the Department. The Department has 21 employees: a Director, two office support personnel, three Foremen, a Chief Operator (Sewer Treatment), an Assistant Chief Operator, two Mechanics, one Mechanic s Helper, eight Skilled Laborers, one Secondary Operator, and one Equipment Operator. EXHIBIT II-1 CURRENT STAFFING OF THE DEPARTMENT OF PUBLIC WORKS POSITION CURRENT ADMINISTRATION Director 1 Assistant to Director 1 Accounts Clerk 1 Subtotal 3 SEWER TREATMENT DIVISION Chief Plant Operator 1 Assistant Chief Operator 1 Skilled Laborer 2 Mechanic (part-time, see Cemetery Division).5 Subtotal 4.5 HIGHWAY DIVISION Foreman 1 Equipment Operator 1 Skilled Laborer 3 Mechanic 1 Mechanic Helper 1 Subtotal 7 12

15 WATER & SEWER DIVISION Foreman 1 Secondary Operator 1 Skilled Laborer 1 Subtotal 3 CEMETERY DIVISION Foreman 1 Skilled Laborer 2 Mechanic (halftime (see Sewer Treatment Division).5 Subtotal 3.5 Total 21 Exhibit II-2 displays the organizational units in the Department and the personnel assigned to each unit. The Cemetery Division and the Sewer Treatment Division share a Mechanic. 13

16 The current organizational structure appears to have worked reasonably well. In part, this has been because the Director of the Department of Public Works has been with the Department for many years. The consultants analysis of the current position of Director indicates that the Director has two sets of responsibilities; the Director manages the daily operations of the Department and prepares short-term and long-term plans. This organizational approach is not fully successful, since it does not ensure that there is sufficient time devoted to planning. The Director is frequently called upon to address operational issues in the field. While field supervision is part of a department head s job, too much of the Director s time is devoted to field operations. The effective management of a Public Works Department requires short-term and long-term planning, priority setting, public communication, and outreach work. There is no middle management within the Department. While the Department is relatively small, the current organization of the Department has one manager, the Director. Division Foremen and the Chief Operator oversee the field operations of their own divisions, but they do not generally participate in budget development, budget administration, or long-term planning. Supervisory personnel tend to work independently and may not be fully aware of other operations within the Department. Thus, there appears to be limited communication within the organization. However, it is important to remember that the Director has little time to engage in formal communication processes and staff meetings; the daily demands on the Director s time preclude formal communication mechanisms. ROLE OF THE DIRECTOR OF THE DEPARTMENT OF PUBLIC WORKS It is our view that the Director s position, as it is now structured, focuses on operational or field needs. The workload is such that the Director devotes significant time to overseeing daily operational problems and reacting to emergencies and has limited time for planning and other management functions. All functions of the Department report to the Director, requiring the Director to assume direct responsibility for a range of operational functions. As a result, there is a need for a structure which allows the Director to delegate and hold personnel accountable for work responsibilities and assignments. 14

17 We recommend that the Town establish a new position of Operations Manager. The Operations Manager s responsibilities should focus on working with the Director to establish priorities and field supervision of each division. The Operations Manager should directly supervise and coordinate the work of the various divisions and should be responsible for the following: Supervision of the Highway Foreman, Cemetery Foreman, Water and Sewer Foreman, and Chief Operator. Reviewing work completed, coordination of work force efforts, establishing daily priorities, and dealing with employee concerns and problems. Solving customer service problems and explaining operations to the public, as required. Overseeing and managing contractors providing services to the Department of Public Works. Serving as Acting Director, in the absence of the Director. Working with the Director to develop the budgets for each operational unit of the Department. The Operations Manager would also be responsible for coordinating the work of each division and, if necessary, re-assigning personnel to priority functions. The Operations Manager should also be an important link in the internal communication system within the Department and hold staff meetings with Foremen to share information and coordinate work. The Operations Manager should also work with the division supervisors so that they understand the budget development and administration process. RECOMMENDATION II-1: The Town should create the position of Operations Manager to oversee field operations of the Department. The creation of the new position of Operations Manager will allow the Director of the Department of Public Works to devote more time to planning. The Director would remain responsible for the general oversight of the entire Department and the administrative services of the Department, but would also focus on important planning functions, such as: 15

18 Short-term planning, including the development of priorities for the Operations Manager. Long-term planning, including the development of comprehensive inventories of the Town s infrastructure, the development of priorities for infrastructure repair, and articulating needs to Town policy-makers. Development of the annual budget and capital plans Coordinating the administration of the annual budget. Working with Town policy-makers to establish major initiatives and develop Department goals. Evaluating service delivery and the development of department budgets and cost estimates. Supervising engineering consultants. Coordinating functions with other Town agencies. The Operations Manager should be a non-union management position with a salary in the range of $65,000 to $75,000 per year. Ideally, the position should be filled by a municipal public works professional who has experience supervising municipal public works services and maintenance and construction projects. The person employed should have approximately 10 years of experience relating to road maintenance, water and sewer systems, and maintenance of parks, cemeteries and grounds. Strong field supervisory experience should be required. The Operations Manager need not be an engineer or have a formal education, but a Bachelor s Degree in a field related to public works administration is desirable. Project management experience and financial management skills are essential. RECOMMENDATION II-2: The compensation for the Operations Manager should be between $65,000 and $75,

19 RECOMMENDATION II-3: The Town should redefine the role of the Director of the Department of Public Works. The creation of a new position of Operations Manager requires some minor reorganization of the Department. Under the new organization, the following chain of command would be operational. The Operations Manager, the Assistant to the Director, and the Accounts Clerk should report to the Director of the Department of Public Works. The Cemetery Foreman, Highway Foreman, Water and Sewer Foreman, and Chief Plant Operator should report to the Operations Manager. The equipment repair function should remain in the Highway Division; however, once the position of Operations Manager is operational, it may be possible to have an Equipment Repair Division reporting to the Operations Manager. RECOMMENDATION II-4: The Department of Public Works should realign the Department s chain of command, when the proposed position of Operations Manager is filled. RECOMMENDATION II-5: The Department s chain of command should be as follows: The Operations Manager, the Assistant to the Director, and the Accounts Clerk should report to the Director of the Department of Public Works. The Highway Foreman, the Cemetery Foreman, the Water and Sewer Foreman, and the Chief Operator should report to the Operations Manager. The following exhibit displays the different roles of the Director of the Department of Public Works, the Operations Manager, and a Division Foreman. 17

20 EXHIBIT II-3 ROLES OF THE DIRECTOR OF THE DEPARTMENT OF PUBLIC WORKS, THE OPERATIONS MANAGER, AND A DIVISION FOREMAN POSITION RESPONSIBILITY Director of the Department of Public Works Operations Manager Foreman (general role) Carries out the overall mission of the Department. Ensures effectiveness of Department operations. Develops policies and procedures for the maintenance and repair of the existing infrastructure, including pavement management programs. Develops a municipal infrastructure program. Develops the operating budget and the capital program for existing infrastructure repairs. Develops snow and ice procedures and policies. Oversees the daily operations of each division. Implements the budget. Reviews and follows up on work assignments. Coordinates activities of each division. Carries out the policies of the Department. Oversees snow and ice removal. Directs the maintenance of the existing infrastructure, including roads, sidewalks, drainage systems and wastewater collection systems, parks, cemeteries, beaches, public shade trees, cemeteries, and vehicles. Implements the pavement management program. Develops a vehicle and equipment replacement schedule and procedures. Oversees daily scheduling and operations of personnel and equipment to secure the successful completion of the Department s goals, as directed by the Operations Manager. Supervises personnel and work crews. Assists the Operations Manger with resolving complaints. Advises the Operations Manager about problems and suggests new approaches, as appropriate. Makes recommendations regarding needed equipment and resources. 18

21 Works. MANCHESTER-BY-THE-SEA, MASSACHUSETTS Exhibit II-4 displays the proposed organization of the Department of Public RECRUITMENT OF THE DIRECTOR AND THE OPERATIONS MANAGER The retirement of the Director of the Department of Public Works will require the Town to conduct a recruitment effort to employ a new Director. The Town should consider using a number professional advertising journals. The Beacon (monthly publication of the Massachusetts Municipal Association) and the APWA (American Public Works Association) web site, and are publications and web sites where advertisements should be placed. Once a new Director of the Department of Public Works is employed, the Director should be empowered to recruit and hire the Operations Manager. The Town should use the advertising outlets listed above. 19

22 RECOMMENDATION II-6: The Town should conduct an aggressive search for the position of Director of Pubic Works. Below we have presented new job descriptions for the positions of Director of Public Works and Operations Manager. It is recommended that the Director of Public Works have a Bachelor's Degree in civil engineering, or a related field, and ten years of experience in municipal public works administration, engineering and construction. EXHIBIT II-5 J OB DESCRIPTION DIRECTOR OF THE DEPARTMENT OF PUBLIC WORKS Definition The Director performs management, administrative, supervisory and technical work planning, directing, and managing operations of the Department of Public Works, including administration, highway, water distribution, cemetery, sewer, solid waste and recycling, and vehicle maintenance functions; other related work, as required. Essential Functions The essential functions or duties listed below are intended only as illustrations of the various types of work that may be performed. The omission of specific statements of duties does not exclude them from the position if the work is similar, related, or a logical assignment to the position. Supervises and directs the Department of Public Works; plans for and oversees the daily operation of each unit; oversees the development of the operating budget and the capital budget. Formulates policies and program objectives for the department's operation; provides overall direction to operating divisions; plans, organizes and directs department activities through subordinate supervisors; ensures that appropriate safety training is implemented. Develops long-range plans for infrastructure improvements; assesses the infrastructure needs of the Town; estimates the cost of needed improvements or additions; makes recommendations regarding funding priorities. Develops policies and procedures for the maintenance and repair of the existing infrastructure, including the pavement management programs; establishes plans for daily maintenance work; develops snow and ice procedures and policies. 20

23 Represents, interacts and negotiates with the department at a variety of meetings, both within and outside the town; develops and maintains effective working relationships with municipal, regional, state, and federal officials and agencies to ensure compliance with all laws and regulations and consent decrees affecting the work of the department. Engages in crisis management and develops solutions to emergencies caused by failing infrastructure systems; marshals resources to respond to such situations and establishes priorities. Responds to inquiries from the general public and town employees pertaining to department projects and policies; resolves citizen problems and responds to requests for service; develops plans to improve traffic management. Responsible for personnel, including assignment of personnel, evaluation of performance, establishing standards of performance and conduct, administering discipline, and other personnel management functions. Performs similar or related work as required, or as situation dictates. Supervision Works under the policy direction of the Board of Selectmen and administrative supervision of the Town Administrator; responsible duties require the exercise of considerable independent judgment in the planning, direction, and administration of the operation and maintenance of the public works infrastructure. Supervisory Responsibilities Directly supervises the Operations Manager and administrative staff; indirectly supervises division supervisors. Oversees contractors and consultants. Work Environment Approximately 50 percent of work is performed in office conditions; outside work involves exposure to variable weather conditions and hazards associated with construction sites. The volume of work is subject to emergencies and weather-related conditions. The employee is regularly required to attend evening meetings and work outside of normal business hours; on call to respond to emergencies. The employee operates standard office equipment and an automobile. The employee has extensive contact with the general public, town department heads, federal, state and regional agencies, contractors, and consultants. Errors in administrative decisions could result in injury to others, delay or loss of service, damage to buildings or equipment, monetary loss, and legal repercussions. 21

24 Recommended Minimum Qualifications Education and Experience Bachelor's Degree in civil engineering or a related field; ten years of responsible experience in municipal public works administration, engineering and construction; or an equivalent combination of education and experience. Additional Requirements Valid Massachusetts motor vehicle operator s license Knowledge, Ability and Skill Considerable knowledge of the principles and practices of public works planning and management; technical and practical knowledge of the materials, methods and techniques relative to public works projects and issues; thorough knowledge of public works financing and administration; considerable knowledge of personnel management, collective bargaining processes, and purchasing procedures. Ability to respond to emergencies and solve problems; ability to plan, assign and supervise the work of groups of employees engaged in a variety of public works construction and maintenance operations; ability to communicate effectively orally and in writing; ability to establish and maintain effective working relationships with town officials and departments, state and regional agencies, the general public, consultants, vendors, and contractors; ability to work with aggrieved members of the public tactfully and effectively and maintain positive public relations; ability to prepare and administer budgets and long-term capital plans. Management and leadership skills; customer service and public relations skills; skill in developing policies and procedures to accomplish goals and objectives. Physical Requirements Minimal physical effort is required to perform administrative duties. The employee is frequently required to stand, walk, sit, speak and hear and use hands to operate equipment; the employee is occasionally required to lift and move objects weighing up to 30 pounds. Vision requirements include the ability to read and analyze documents, use a computer, and operate a motor vehicle. This job description does not constitute an employment agreement between the employer and employee, and is subject to change by the employer, as the needs of the employer and requirements of the job change. 22

25 EXHIBIT II-6 J OB DESCRIPTION MANCHESTER-BY-THE-SEA, MASSACHUSETTS OPERATIONS MANAGER Definition The Operations Manager performs supervisory, planning, and management work directing the field operations and supervising division foremen and the chief operator; other related work, as required. Essential Functions The essential functions or duties listed below are intended only as illustrations of the various types of work that may be performed. The omission of specific statements of duties does not exclude them from the position if the work is similar, related, or a logical assignment to the position. Oversees the daily operation of the each operational unit; assigns and reviews work; assesses work progress. Assists the Director in the development of the operating budget and capital budget for existing infrastructure repairs; administers the budget in accordance with policies and procedures. Oversees contractual services; assesses contractor performance and works with contractors to improve performance. Plans, organizes and directs daily and cyclical department activities through subordinate supervisors; implements appropriate safety training; develops specifications for equipment and vehicles. Generates necessary information relating to public works assets; makes recommendations regarding priorities and maintenance needs to the Director; assists in the development of cost estimates; makes recommendations regarding funding priorities. Assists in the development of policies and procedures for the maintenance and repair of the existing infrastructure, including pavement management programs; establishes plans for daily maintenance work; develops snow and ice procedures and policies; supervises contractor performing snow and ice removal. May represent the department at a variety of meetings, both within and outside the town; develops and maintains effective working relationships with municipal, regional, state, and federal officials and agencies to ensure compliance with all laws and regulations and consent decrees affecting the work of the department. 23

26 Responds to emergencies; determines personnel, equipment and supplies needed to address emergencies; directs personnel at public works emergencies; oversees and directs snow and ice removal operations. Responds to inquiries from the general public and town employees pertaining to department projects and policies; resolves citizen problems and responds to requests for service; develops plans to improve traffic management. Works with supervisors to assess personnel; ensures that standards of performance and conduct are met, administers discipline in consultation with the Director. Performs similar or related work as required, or as situation dictates. Supervision Works under the administrative direction of Director of the Department of Public Works; responsible duties require the exercise of independent judgment to direct daily maintenance operations. Supervisory Responsibilities Supervises division supervisors directly. Oversees contractors and consultants. Work Environment Approximately 10 to 30 percent of work is performed in office conditions, depending on the season; 70 to 90 percent of work is performed in field or shop conditions which involve exposure to variable weather conditions and hazards associated with construction sites. The volume of work is subject to emergencies and weather-related conditions. The employee is required to attend evening meetings and work outside of normal business hours; on call to respond to emergencies. The employee operates standard office equipment, an automobile and light trucks. The employee has extensive contact with the general public, town department heads, federal, state and regional agencies, contractors, and consultants. Errors in administrative decisions could result in injury to others, delay or loss of service, damage to buildings or equipment, monetary loss, and legal repercussions. Recommended Minimum Qualifications Education and Experience Associate s Degree in construction management, engineering, business administration, or a related field; Bachelor's Degree desirable; ten years of responsible experience in directing work crews, planning daily operations, assessing the personnel, material and equipment required to perform public works projects; or an equivalent combination of education and experience. 24

27 Additional Requirement Valid Massachusetts motor vehicle operator s license MANCHESTER-BY-THE-SEA, MASSACHUSETTS Knowledge, Ability and Skill Knowledge of the principles and practices of public works planning and management; technical and practical knowledge of the materials, methods and techniques relative to public works projects and issues; knowledge of the management and supervision of personnel and work crews; knowledge of public purchasing procedures. Ability to plan, supervise and direct work crews and measure performance; ability to supervise contractors and monitor contract compliance; ability to assess maintenance needs; ability to communicate effectively orally and in writing; ability to establish and maintain effective working relationships with town officials and departments, the general public, consultants, vendors, and contractors; ability to work with aggrieved members of the public tactfully and effectively and maintain positive public relations; ability to administer budgets and maintenance plans. Supervisory, management and leadership skills; excellent customer service and public relations skills; skill in developing policies and procedures to accomplish goals and objectives. Physical Requirements Minimal physical effort is required to perform administrative duties. The employee is frequently required to stand, walk, sit, speak and hear and use hands to operate equipment; the employee is occasionally required to lift and move objects weighing up to 60 pounds. Vision requirements include the ability to read and analyze documents, use a computer, and operate a motor vehicle. This job description does not constitute an employment agreement between the employer and employee, and is subject to change by the employer, as the needs of the employer and requirements of the job change. 25

28 III. SOLID WASTE AND RECYCLING SERVICES The Town of Manchester-by-the-Sea provides solid waste and recycling services to residents in two ways. The Town provides weekly curbside collection of solid waste and recyclables from residences in the Town. The Town also provides collection of solid waste and recyclables at a transfer station two days per week. In addition to the collection of solid waste, the Town has a contractual agreement with Wheelabrator s Resource Recovery Facility located in North Andover (known as WNA). This facility accepts the Town s solid waste which is burned and turned into electricity. During FY 06, the Town delivered a total of 2, tons to WNA, paying $64.00 per ton, for a total cost of $155, COST OF WASTE AND RECYCLING SERVICES The cost of providing solid waste and recycling services to the Town during FY 06 totaled $205,000 for the contractual portion and an additional $30, for the cost of operating the transfer station. In addition, the Town expended $13, for composting. The total cost of providing collection and disposal of solid waste and recyclables and composting during FY 06 was $404, To offset the cost of providing this service, the Town collected revenue from the sale of stickers for the curbside service, annual passes for the use of the transfer station, and transfer station day passes for temporary use of the transfer station. The sale of these permits and passes yielded a total revenue of $133, In addition to the sale of permits and stickers, the Town received a refund credit from WNA in the amount of $17, The amount of revenues received for solid waste services in FY 06 totaled $150, In comparing the amount expended to the amount of revenue received, the Town is expending $253, more for this service than it receives in revenue. Exhibit III-1 shows the cost of services and the current revenues collected. The exhibit indicates that revenue collected is considerably less than the amount necessary to fully fund this service. An analysis of the cost for each service is detailed below. 26

29 Analysis suggests that there are several matters that Town policy-makers should consider when reviewing solid waste collection services. The Town should consider whether it wishes to continue to provide both solid waste collection services, i.e. curbside services and transfer station services. The Town should consider the policy of adjusting the cost of solid waste service so that revenues fully cover the cost of services. The Town should evaluate the success of curbside collection versus the operation of the transfer station. The Town should increase the cost of one-day passes so that revenues cover the estimated cost for the disposal and hauling of materials disposed by the user of the one-day pass. The following exhibit displays expenses and revenues for solid waste and recycling services. EXHIBIT III-1 ESTIMATED COST OF SOLID WASTE AND RECYCLING SERVICES EXPENSES Collection/Transfer Station Contract $205, Disposal Cost at WNA $156, (2, tons x $64.00 per ton = $156,623.04) Transfer Station Expense $30, Composting Expense $13, TOTAL FY 06 EXPENSE $404, REVENUE Curbside Stickers $80, Transfer Station Day Passes $2, Transfer Station Annual Passes $50, SUBTOTAL REVENUE $133, Wheelabrator Refund/Credit $17, TOTAL REVENUE $150, DIFFERENCE EXPENSE MINUS REVENUE ($253,818.97) 27

30 COST OF TRANSFER STATION OPERATION Exhibit III-2 presents the estimated cost of operating the transfer station. Under the contract between the Town and the solid waster hauler, the Town is allowed a set number of hauls from the transfer station to the disposal site each month. If there are fewer hauls in a month, the Town is credited with $150 for each haul under the allowed number of hauls. For purposes of our analysis, we have used the $150 per haul value as the value for each roll-off haul. In Exhibit III-2, the cost of operating the transfer station has been estimated. EXHIBIT III-2 COST OF TRANSFER STATION OPERATIONS Solid Waste Container Hauls (FY 06) 152 hauls x $150/haul Recycled Paper Container Hauls (FY 06) 91 hauls x $150/haul Co-mingled Recyclables Container Hauls (FY 06) 45 hauls x $150/haul $22, $13, $6, Subtotal (contract) $43, Transfer Station Salaries $18, Miscellaneous Expenses $18, Subtotal (salaries and miscellaneous expenses) $80, Solid Waste Disposal at Wheelabrator tons x $ 64.00/ton $76, Total Transfer Station Expense $157, In analyzing the costs of operating the transfer station, we compared the cost of operating the transfer station to the amount of revenue collected for the transfer station. The following exhibit shows the total estimated cost of operating the transfer station, the number of transfer permits issued during FY 06, and the estimated cost of the transfer station on a permit basis. The transfer station permit fee of $100 per permit does not cover the cost of operating the transfer station. 28

31 EXHIBIT III-3 MANCHESTER-BY-THE-SEA, MASSACHUSETTS ACTUAL COST OF TRANSFER STATION ON A PERMIT BASIS (FY 06) Transfer station expenses $157, Number of transfer station permits issued annually 503 Estimated cost of service on a per permit basis (transfer station expenses divided by number of annual permits) $ Current permit fee $ Estimated annual permit cost minus current permit fee ($213.64) The estimated cost per permit is not fully accurate since it does not include the revenues generated from the daily passes. However, the exhibit does illustrate that 33.7 percent of the cost of operation is covered by annual permit fee of $100 per permit. While this analysis does not include the permit fees collected for daily passes, it does include the cost of operating of the transfer station, including the cost of disposal of all materials. The Town issues day passes which allow the disposal of solid waste at the transfer station at the cost of $10.00 per day. Since the Town does not weigh the material received for disposal by day passes holders, the effect of day passes on the cost of the transfer station operation cannot be fully determined. However, in FY 06, a total of 290 day passes were issued at the cost of $10 per day, for a total revenue of $2, While this amount represents 5.4 percent of the total revenue collected, the consultants suspect that the amount of disposed material which is generated from day passes is greater than the percent of operational revenues collected from the passes. Day passes are typically issued to contractors working on local houses, or individual residents who might be cleaning out a house. Since the type of material generated from these situations is not normally household trash, it is safe to assume that the amount of material that is disposed is greater in volume than comparable household trash. The consultants assume that the actual amount that is collected for the day passes does not cover costs incurred by the Town. If the Town continues the transfer station operation, the day pass fee should be increased. 29

32 The consultants have analyzed the Town s cost of providing curbside collection service of solid waste and recyclables for its residents. Assumptions for this analysis include: the cost of hauling the roll-off containers from the transfer station is approximately $43,200 (see exhibits above); the balance of the collection contract equals the cost of curbside collection. EXHIBIT III-4 ESTIMATED COST OF CURBSIDE COLLECTION AND DISPOSAL OF SOLID WASTE AND RECYCLABLES ITEM COST OF ITEM Total contractual cost for collection $205,000 Transfer station hauls ($43,200) Estimated curbside collection costs $161,800 Disposal of solid waste collected at curbside (1, tons x $64.00 per ton = $78, $78, Total curbside collection cost $240, Revenue collected (stickers) $80,277 Difference (expense minus revenue) ($160,230.84) To quantify the cost on a per unit basis, we have made several assumptions, which include estimating the total number of households that could be serviced by a curbside collection program (approximately 2,200 households). We estimate that approximately 1,696 household use curbside pickup (2,200 households minus 503 transfer station permits = 1,696). The total number of stickers/bags sold for the curbside collection program yielded $80, and the cost for each sticker/bag was $1.00; the estimated number of bags/stickers purchased per household per year was 47 ($80,277 divided by 1,696). Since the cost of the curbside collection program was $240, and the number of stickers sold during FY 06 totaled 80,277, sticker/bag revenue recovered approximately one-third of curbside collection costs. The actual cost of collection and disposal per sticker/bag was approximately $3.00. The annual cost of the curbside collection program per household served was approximate $142 30

33 (curbside collection costs of $240, divided by the estimated number of households serviced by curbside collection, 1,696). If the Town chooses to eliminate the operation of the transfer station and only provide curbside collection to residents, the cost per household would be approximately $165 per year. To estimate this annual cost, the consultants assumed that the costs of the transfer station operation can be used to offset increases in curbside collection costs, e.g., additional trucks or collection trips required for the expansion of the curbside collection program. The curbside collection contract totaled $205,000 per year. The total waste collected and disposed totaled 2,450 tons. Based on these assumptions, the costs of a full curbside collection program are estimated below. VOLUME OF SOLID WASTE EXHIBIT III-5 COST OF FULL CURBSIDE COLLECTION Solid waste collected Estimated weight per bag/barrel 2,450 tons 30 pounds Total number of bags generated 163,333 Total number of bags divided by 2,220 (estimated number of households) = bags per household per year 74.2 COST OF COLLECTION & DISPOSAL Collection Costs Disposal Costs $205,000 (see Exhibit III-1) $156,800 ($2,450 tons x $64.00 per ton) Total Cost $361,800 The per unit cost (cost per bag cost of $2.22) is determined by dividing the total cost of services by the total number of bags. Assuming 74.2 bags per year, per household, the annual cost per household would be $ per year. 31